A Clean Air Plan for Hong Kong

– I –

Contents

t is a priority of this Government to reduce air pollution and the associated risks to people’s health. Improving Hong Kong’s air quality is a complex exercise that requires strong understanding of environmental sciences, ability to chart evidence-based multi-disciplinary Ipolicies, effective feedback and assessment mechanisms and financial resources to take action. We are fortunate to have these conditions in place, together with the active collaboration and determination within the HKSAR Government to deliver results. I commend the Environment Bureau on presenting A Clean Air Plan for Hong Kong in collaboration with the Transport and Housing Bureau, Food and Health Bureau, Development Bureau, as well as other relevant departments.

CY Leung Chief Executive Hong Kong Special Administrative Region

– 1 – A CLEAN AIR PLAN FOR HONG KONG

Our pursuit Develop a comprehensive plan

Our approach Adopt evidence-based approach to understand complexity and identify solutions

Basis of plan Improve public health; and collaborate with key stakeholders including investing time in regional efforts

Air quality management system Improve all aspects needed to understand, manage and review policies and measures

Roadside air quality Target major emission sources, as well as use transport management and urban planning to reduce pollution

Marine emissions Mandate fuel switch at berth for ocean-going vessels, use cleaner marine diesel for other vessels; and build on-shore power facilities for the Kai Tak Cruise Terminal

Power generation Cap emissions from local power plants; review fuel mix and promote demand-side management to improve energy efficiency

Non-road mobile machinery Regulate new machinery and existing machinery which has not been exempted

– 2 – 1 | After the Haze

ir quality should not be This is the basis for Hong Kong to River Delta may well be a special just a passing concern make choices, change behaviour designated Emission Control Area. – it is the envelope where necessary and upgrade A within which all our daily practices in controlling emission Also by then, our rail network will be activities take place. Air pollution from major sources, including more extensive. Commuters will find does not have to be part and parcel vehicles, vessels and power plants. their daily journeys on rail, buses and of life in Hong Kong. Strengthening We commit to engage stakeholders at inter-changes smoother and more our ability to reduce air pollution and the public regularly to share pleasant. Hybrid and electric vehicles saves billions of dollars in future knowledge and perspectives. of various types will be plying our public health care costs, missed roads in larger numbers. Many parts work days, school absences, not to In future, there will be ever more real- of the city will offer an exceptionally mention the discomfort and suffering time, on-line air quality information pleasant ambience for pedestrians, from preventable illnesses and that is locally and also nationally such as along the harbour-front, and premature death. relevant. Our goal is for Hong Kong cyclists can travel long distances to be among the best in the world along defined paths in the New Our residents are impatient for in understanding air quality so that Territories and even parts of Kowloon improvement in air quality. They we can continue to fight air pollution and Hong Kong Island. are becoming more and more aggressively. knowledgeable about the issues By 2020, regional air quality will and more and more pointed in the In two to three years, our roadside air be much improved as a result of questions they demand answers to. pollution levels will begin to drop as tighter regulation in Hong Kong and Experts and activists are helping the result of efforts to clean-up the on the Mainland for both industry to raise public awareness about city’s oldest, dirtiest vehicles kick-in. and transportation. Hong Kong will have designed effective programmes together with Guangdong to promote Our goal is for Hong Kong cleaner technologies in factories that will reduce smoggy conditions. to be among the best in Guangdong and Hong Kong are already partners in cleaning-up. We the world in understanding will see more ‘blue sky’ days not only in Hong Kong but also in Macao air quality so that we can and the Pearl River Delta. By 2030, continue to fight air pollution old behaviour will have changed – all emissions sources will be more aggressively stringently controlled throughout the region. Green and clean living will air quality and health issues, and In four to five years, our roadside have taken root. This is our pursuit. it is just a matter of time that air quality will begin to improve technologists and artists will join more significantly as the mix of the The many initiatives, schemes and hands to create easy-to-understand commercial vehicle fleet change. programmes highlighted in this “apps” for personal mobile devices By then, ships too will be using document involve many stakeholders to keep people informed about cleaner fuels while berthing, instead and also the community as a whole air quality in districts and even of continuing to burn high sulphur to step-up. We look forward to your specific pollution ‘black spots’. We bunker fuel. Before the turn of the active support to improve air quality. welcome the rise in knowledge and decade, the whole of the waters of expectation within the community. Hong Kong, Macao and the Pearl

– 3 – 2 | Introduction

e want to first set the Delta (PRD), large population meeting the challenge of controlling stage to explain the increases and economic growth in emissions, the land-sea breeze background to Hong the entire Hong Kong-PRD region created by air circulation between WKong’s air quality had great impact on the environment, the sea and landmass in the PRD before stating the new clean air plan including air quality. Many more estuary can lead to the trapping of because the plan is designed to activities and many more people now air pollutants within the region when address our specific circumstances. share the same air-shed. wind flow is weak, thus causing very high pollution episodes. A good place to start is to consider the Hong Kong-Macao-PRD share the questions frequently asked by the public. same air-shed, home to some 60 Secondly, reducing people’s million people and is one of the exposure to air pollution will have A: How does air pollution affect world’s major industrial and logistics the greatest positive health impact. Hong Kong? zones.1 Hong Kong companies Thus, reducing roadside air pollution We need to consider both general air have significant investments in in Hong Kong makes a substantial quality and localized air quality, such manufacturing, as well as port and difference to health because a as at roadside. transport facilities in the PRD.2 In very large number of people will be other words, this is a region with high exposed to lower vehicular pollution First, greatly expanded emissions arising from a large variety on a daily basis as a result of where industrialization in the Pearl River of economic activities. In addition to they live or where they go.

FIGURE 1 Land-sea breeze trapping effect in the HK-Macao-PRD region

2. Air pollutants emitted on land surface around the Pearl River Delta Estuary would slosh around in the region.

3. Air pollution level can be built up to high levels when local dispersion is weak. 1. The sun heats the land more than the water surfaces and causes air to rise over land (red) and sink over water (blue); forming the schematised circulation.

Hong Kong and Pearl River Delta satellite image map

– 4 – vehicular emissions. This affects not only those on the roadside and in the vehicles on that road but also all those living or working in buildings on or near congested roadways.

• Recent evidence shows that Hong Kong is especially vulnerable to shipping emissions (burning of bunker fuel), which are highly toxic 3 (SO2, NOX, PM and heavy metals), because of the large number of ships releasing pollutants berthing and sailing near populated areas due to the particular shipping lanes being used4 (see Figure 21). Typical Hong Kong roadside conditions • Emissions from local power plants have been greatly reduced. Further reduction opportunities From our past experience, the and coaches) with actions bold are largely about changing the boldest actions made the greatest enough to make a difference. fuel mix of our power generation difference. In the 1990s, Hong Kong to decrease reliance on coal. banned the use of high sulphur fuels • Contributing to poor roadside air for industrial use, which brought quality is worsening congestion. • Hong Kong is also affected by immediate and significant health With vehicle speeds decreasing regional and super-regional gains; and in early-2000s, the and the number of vehicles on pollution arising from sources diesel-to-LPG switch for taxis and the road increasing, Hong Kong in Guangdong and even further public light buses (PLB) also made is running into a vicious cycle – away. Regional pollution is an a difference to roadside air quality, even as cleaner vehicles are being important factor in Hong Kong’s although much of these latter gains deployed, emissions per kilometre chronically poor air quality (O have been eroded over time as the tend to rise due to slower average 3 and PM ). emission reduction devices require road speeds especially in city 2.5 regular maintenance. centres with high population and To deal with these challenges, therefore high exposure risk. cross-Bureaux and Departmental B: What are Hong Kong’s collaboration, as well as the specific air quality challenges • Another important contributing government working with the today? factor to poor roadside pollution community, can deliver substantial is the increase in closely-spaced Our air quality challenges are: public health and other gains to high-rise buildings on both sides • Poor roadside air quality presents the community, which are further of relatively narrow, busy roads the major daily public health elaborated below. in many parts of the city. High threats in Hong Kong (NO2, diesel PM) – this needs to be dealt density development has often with decisively.3 We need to deal occurred without consideration for with the most polluting vehicles air ventilation corridors, creating (old diesel buses, trucks, lorries ‘street canyon’ effects, trapping

– 5 – 2 | Introduction

FIGURE 2 Summary of air policy focal points

1 2 3 Currently, even if HK However, we can We must also emits no air emissions improve HK people’s collaborate with ...we cannot meet health greatly by Guangdong to reduce WHO AQG reducing regional pollution local exposure

C: How should Hong Kong air pollution problem and is emissions reduction further ahead. deal with regional and local air moving ahead in cleaning-up, with The mainland, including Guangdong pollution? Guangdong Province at the national Province, has also significantly tightened its air quality standards Hong Kong must work hard to deal forefront of emissions reduction in 2012. Mainland officials have with its own pollution and collaborate efforts. The 11th Five Year Plan specific targets to meet under the with regional partners to deal with (2006-10) focused on reducing SO ; the 12th Five Year Plan (2011- 12th Five Year Plan for SO , NO , as regional pollution. 2 2 X 15) has extended the control to well as energy and carbon intensity also cover NO ; and the 13th Five reduction. The Central People’s Government X recognizes the nation’s serious Year Plan (2016-20) will likely push

Smoggy condition when regional pollution is dominant

– 6 – It should also be recognized that: • Hong Kong can influence regional Hong Kong and Guangdong Province have been collaborating to improve regional air quality policy by taking a air quality since 2002. Significant regional reductions have been achieved for SO , RSP, NOx and VOC by 20% to 55% by 2010, as compared with 1997. The leadership position in both 2 Hong Kong-Guangdong Joint Working Group on Sustainable Development and research and policy. Specific Environmental Protection endorsed a new regional air pollutant emission reduction collaborative research, projects plan in November 2012, setting out specific targets for 2015 and target ranges for and action plans are developed 2020. The two sides will review progress in 2015 to finalise the targets for 2020.5 jointly with our Guangdong The two sides are also actively discussing joint research projects to better counterparts. understand the regional photochemical smog problem, as greater understanding is needed to fine-tune control policies.

FIGURE 3 Hong Kong-Guangdong 2015 and 2020 emissions reduction targets/targeted ranges

Emission Reduction Targets/Ranges Pollutant Area (As compared with 2010) 2015 2020 Hong Kong 25% 35-75% SO 2 PRDEZ 16% 20-35% Hong Kong 10% 20-30% NO X PRDEZ 18% 20-40% Hong Kong 10% 15-40% RSP PRDEZ 10% 15-25% Hong Kong 5% 15% VOC PRDEZ 10% 15-25%

• Hong Kong has strong knowledge The Hong Kong-PRD regional air monitoring network is the best in the nation and in air science both within the compares well with the best-of-the-best in the world.6 It provides the vital data for Environmental Protection evidence-based policies. Department (EPD) and our Our EPD officers and non-government air quality experts have longstanding universities. Their expertise collaboration with Guangdong and mainland government and non-government is recognised nationally and experts on research and control measures. We aim to expand our efforts internationally. This capacity must to participate in the exchange of AQM knowledge regionally, nationally and internationally so that our officers and local experts can work at the cutting-edge be built upon so that Hong Kong of AQM knowledge. continues to be a leader in air quality management (AQM). The national government began releasing air quality data on-line to increase transparency on 25 November 2010, and further extended the coverage of

pollutants to PM2.5 and O3 on 1 January 2013.

– 7 – 2 | Introduction

FIGURE 4 Hong Kong and PRD networks of air monitoring stations

Hong Kong’s Air Quality Monitoring Stations

Pearl River Delta Regional Air Quality Monitoring Network

– 8 – • There are also good opportunities The government launched a five-year $93.06 million Cleaner Production to target Hong Kong-owned Partnership Programme (with the Hong Kong Productivity Council as the factories in Guangdong Province implementation arm) in collaboration with Guangdong Province’s Economic and to adopt ‘cleaner production’ Information Commission in 2008 to work with Hong Kong-owned factories to adopt cleaner production practices and technologies. Guangdong Province also practices and reduce air pollution. started a similar programme for factories in Guangdong. Up until 2012, both programmes have produced good results. In December 2012, the Legislative • Hong Kong is reformulating our Council approved a further $50 million to extend the programme for two years own air quality policy to focus with special focus on encouraging air pollution reduction, energy saving etc.7 on health protection by aiming Our thinking is to take the learning from this programme and work with our to manage not only air pollutant Guangdong partners to further develop it to dovetail with Guangdong’s cleaner concentrations but also population production efforts for the 13th Five Year Plan so as to capture more significant exposures. After all, local regional emissions reduction. emissions harm us most because of their proximity and relatively • Our local air quality control emission reduction measures high concentration, especially at measures are based on sound sufficient to meet the targets, as roadside and areas most affected science. We use the health-based well as prioritise the measures by shipping emissions. Tough local WHO Air Quality Guidelines (WHO based on health gain and cost action for vehicular emissions, AQG) as a constant reference. effectiveness. shipping emissions (and also We work out quantitative interim power plants’ emissions) can targets, identify practicable • Through well-coordinated improve public health substantially. policies, other cities and regions around the world facing similar In January 2012, the HKSAR Government announced its intention to adopt a new challenges have made substantial set of Air Quality Objectives (AQO) which makes reference to the WHO AQG and improvements through long its interim targets, with a view of the new AQO coming into effect in 2014 subject term, coordinated, multi-pronged to the passage of the relevant legislation. An Amendment Bill to amend the Air strategies – Hong Kong and Pollution Control Ordinance was submitted to the Legislative Council in February our region can also meet the 2013 to tighten the AQO, with a provision that the AQO shall be reviewed at least once every 5 years after the commencement of the new AQO.8 challenge.

FIGURE 5 Current and new AQOs

– 9 – Professor Alexis Lau Hong Kong University of Science and Technology “As China restructures its economic activities to be more environmentally sustainable, Hong Kong must leverage its own professionalism and expertise to play a role to advance the cause locally, regionally and nationally. We must think holistically about air quality management and climate change mitigation by adopting an evidence-based approach to form policies.”

Professor Hao Jiming Academician, Dean of Environmental Sciences and Engineering, Tsinghua University, Beijing “Together let’s try to first understand the nation’s future overall development direction. Then we need to know which are the most important local, regional and national environmental issues that people are concerned about – PM2.5 pollution and regional haze just to name a couple – and lastly, we should collaborate to think about science, technology and control policy formulation to solve our challenges.”

Professor Tao Wang Hong Kong Polytechnic University “We need to unite expertise and efforts in government and academia within Hong Kong, on a regional basis, as well as on a national scale to deal with complicated issues like photochemical smog. Scholars in Hong Kong are ready to work together locally and across the boundary to solve a major problem – air pollution.”

Agnes Mak Executive Director, Hong Kong Productivity Council “The Cleaner Production Partnership Programme demonstrates the success model of public-private collaboration to improve the regional environment. Through 2,000 projects over 5 years and follow- up investment, Hong Kong-owned factories in the PRD reduced 10,000 tonnes of air pollutants and 10 million tonnes of wastewater discharge, securing a saving of RMB 700 million in energy costs per year.”

– 10 – D: How does Hong Kong’s Sydney have better air quality than to wash away pollution, whereas the air quality compared to other Hong Kong, and their surrounding natural air flow movements in the cities? regions have far fewer industrial, port Hong Kong-Macao-PRD region tend to trap pollution. In general, Hong Kong’s air quality and logistics activities. is broadly comparable to some other In other words, Hong Kong must high-income Asian cities, such as Each city has its own characteristics. work doubly hard to fight air pollution Seoul and Taipei, but not as good as Hong Kong’s cityscape suffers from than many other cities, and we are Singapore. Major cities in Europe, the ‘street canyon’ effect. Moreover, committed to do so. North America and Australia, for Singapore’s equatorial climate have example, London, New York and frequent rain showers, which help

FIGURE 6 World exposure to PM, WHO 2012

Exposure to particulate matter with an aerodynamic diameter of 10μm or less (PM10) in 1100 urban areas*, 2003-2010

– 11 – 3 | The Basis of the Clean Air Plan

ur Clean Air Plan has FIGURE 7 Premises of the Clean Air Plan THREE premises: O1. Improving Hong Kong people’s public health is the driving reason for taking resolute 1 action; The best reason 2. Collaborating across Bureaux and for action is to improve Departments, and between the public health government and the community, can deliver the largest health and other benefits to Hong Kong people because there are limits to end-of-pipe solutions, especially with respect to roadside air quality; and

3. Investing time and effort in regional efforts will maximise the overall public health gains to 2 Hong Kong as a whole. Cross government and community collaboration will deliver largest gains

3 Maximize overall gains through regional collaboration

– 12 – FOR POSITION ONLY

4 | Our Air Quality Management System

ur air quality policy aims made up of the regulatory activities health effects of the pollutants, and to reduce air pollution undertaken to reduce air pollution taking steps to reduce or control the and the associated health and the associated health risk. The sources of pollution to reach or not Orisk to the people of Hong AQM process includes understanding exceed specific targets. Kong. AQM by the government is the sources of pollution and the

FIGURE 8 AQM System

ACTION

Regard the WHO AQG as a constant reference in setting the local AQO and in charting air quality policy.

Conduct relevant health studies together with local experts, consult Department of Health, and prioritise emissions reduction measures based on health protection gains and cost effectiveness.

Provide time-based targets and milestones for achieving the new AQO and striving for maximum gains. GOAL

Review the AQO no less than once every five years.

Monitor the extent of achieving the AQO and publish the progress periodically. To better join-up Hong Kong’s AQM Monitor the effectiveness of control measures and publish them periodically, and fine-tune or reassess programmes where necessary system to protect for greater effectiveness. public health

Strengthen our air monitoring network by adding new stations in Tuen Mun (2013) and Tseung Kwan O (2014-15). Additional stations may be added where necessary.

Replace the Air Pollution Index (API) with a new health-based Air Quality Health Index (AQHI) to better reflect the health risks of air pollution and provide clearer health advice to the public and vulnerable groups. The AQHI has been reviewed and supported by the WHO. With the tightening of the AQO and the use of the AQHI, the number of hours that the air pollution is rated at ‘high’ or ‘very high’ will substantially increase even when there is no material change in pollutant concentrations. 9

Provide readily available and user-friendly on-line performance reporting on all aspects of the AQM system, including air data, policy, reductions, targets, milestones, progress, programme effectiveness etc.

– 13 – REDUCING ROADSIDE AIR POLLUTION TO LOWER HEALTH RISK Highest gains will come from aggressive tail-pipe control together with appropriate transport management and urban planning measures

– 14 – 5 | Reducing Roadside Air Pollution

hile we must attack planning solutions (Development Hong Kong section of Guangzhou- roadside pollution with Bureau and Planning Department) to Shenzhen-Hong Kong Express Rail vigour because this financial incentive solutions. Link and Shatin-to-Central Link will W presents the greatest become operational. This provides daily health risk to the people of Hong We reaffirm the longstanding policy the backdrop for us to provide the Kong, we also want to put in place that rail forms the backbone of public community with a new mobility an integrated people-centred policy transport with franchised buses experience with reorganised bus in the longer-term to achieve cleaner, and other supplementary transport routes and network that can serve the more efficient public transport modes providing complementary community better, and to provide bus- through making public transport a services and filling service gaps to to-rail and bus-to-bus interchange that preferred choice mode, managing ensure the community is adequately are easy and pleasant, as well as to road use and meeting diverse needs served. In the coming few years, the take air quality and public health into of the travelling public. West Island Line, Kwun Tong Line account in transport management and Extension, South Island Line (East), urban planning. Bureaux and Departments are collaborating to deliver solutions ranging from end-of-pipe solutions The 3 ‘S’ Committee (Environment Bureau and EPD), This committee comprises the Secretaries for the Environment, Transport and Housing, and Development to discuss issues that transact across their Bureaux transport management solutions and Departments. Air quality is one of the issues frequently discussed at 3S (Transport and Housing Bureau meetings in this term of government. and Transport Department), urban

In the planning of new development areas, as well as revitalisation of old ones, we will look for opportunities to enhance air ventilation to prevent or mitigate the effect of ‘street canyons’, and promote non-motorised transport, such as improving walkability, pedestrianising where appropriate, and promoting cycling where safety is not compromised. Detailed plans will have to be worked out in the future.

End-of-pipe solutions Before we present an extensive programme to deal with roadside emissions, we wish to present facts about Hong Kong’s vehicular fleet. Figures 9-12 show the demography of Hong Kong’s vehicles and their respective emissions profiles. In summary, Hong Kong still has a large Street canyons trap vehicular pollution number of highly polluting vehicles plying our roads.

– 15 – 5 | Reducing Roadside Air Pollution

FIGURE 9 Types and numbers of registered vehicles in Hong Kong (as at December 2012)

Goods Vehicles Taxis (LPG) 119,883 18,138

PLB 4,350 Non-franchised 66% LPG Buses 34% Diesel 7,613

Private Light Buses Franchised Buses 2,463 5,743 Private Cars Motorcycles 57,368 24% LPG 494,646 76% Diesel

FIGURE 10 Emissions profiles of Hong Kong’s vehicular fleet (as in 2011)

– 16 – FIGURE 11 Emissions standards of diesel commercial vehicles (as at December 2012)

Euro 5 8,800

Pre-Euro Euro 4 221 19,152 Euro 4 Euro 5 773 30,760 Euro 1 864

Euro 1 12,613 Goods Vehicles Total: 119,883

Euro 2 2,619

Euro 3 1,266 Euro 2 Euro 3 20,442 Franchised Buses 28,116 Total: 5,743

FIGURE 12 Emissions comparison of diesel commercial vehicles (Pre-Euro to Euro 6)

– 17 – 5 | Reducing Roadside Air Pollution

From the preceding figures, it is and LPG-powered PLB with worn out Taxis and LPG-powered PLB clear that we must target diesel catalytic converters. Virtually all taxis and 66% of the commercial vehicles (DCV), PLB fleet are powered by LPG.12 franchised buses and inadequately- In summary, to tackle our roadside These vehicles are installed with maintained LPG vehicles as top air pollution, we need to target both emissions-reduction catalytic priorities. old diesel vehicles and inadequately- converters, which gradually wear out. maintained LPG-powered vehicles. Once worn out and not replaced, Pollution from Hong Kong’s emissions from these vehicles will vehicular fleet Diesel commercial vehicles (DCV) emit ten times more NOX, CO and Roadside pollution is mainly caused Our new ‘carrot and stick’ VOC than when these devices were by vehicles within Hong Kong. Here programme is designed to incentivise in good condition. Our tests show we have a twin problem – firstly, the replacement of pre-Euro 4 DCV the devices of 80% and 45% of LPG the city’s fleet of old DCV emits by cleaner models and to ban the taxis and LPG PLB in Hong Kong disproportionally large amounts of use of the older models within a have worn-out. Unlike smoke from PM (which are carcinogenic and the stated period in the coming years.10 diesel vehicles, the emissions from LPG vehicles are invisible to the eye. finer PM2.5 can enter deeply into our DCV include trucks, lorries, diesel- Special sensors are needed to detect lung tissues) and NOX, the generic PLB and non-franchised buses these emissions. Taxis and LPG PLB term for NO and NO2. A pre-Euro 3 (school buses, tourist coaches etc). diesel vehicle emits 7.5 to 34 times This programme aims to remove the with defective emission-reduction as much PM and 3.5 to-4.5 times dirtiest DCV currently on our roads devices could account for up to 40% of the roadside NOx. Thus, our key as much NOX compared to a cleaner (pre-Euro, Euro 1, Euro 2 and Euro Euro 5 model. Thus, our policy is to 3) over the period 2014 to 2016 for programme to deal with this problem replace the older, dirtier ones with Pre-Euro 3 DCV and Euro 3 vehicles is to fund a one-time replacement of Euro 5 or Euro 6 models (the latter is by 2019.11 With these and other these devices. expected to come to market by 2014 measures stated below, Hong Kong’s and be available in Hong Kong in roadside air quality will improve from greater numbers by 2016). year-to-year starting from 2014-2015.

Another thorny problem is the high

NO2 levels at roadside. The days DCV replacement programme 2013 where the roadside API exceeds 100 If all pre-Euro 4 DCV (excluding franchised buses) are replaced by Euro 5 model

(the very high air pollution level range or better, the emissions of PM and NOX from vehicles will be reduced by 80% from 101 to 200) are mostly caused and 30% respectively, while the total local emissions of these pollutants will be by high NO levels. Since 1999, NO reduced by 17% and 9% respectively. These represent very major reductions that 2 2 should lead to PM and PM levels at roadside meeting the new AQO for these levels have increased by 20% at 10 2.5 pollutants by 2020. This will reduce the number of premature deaths due to long- roadside, even as their ambient levels term exposure to these pollutants by around 14% per annum. Moreover, there will have decreased. Combustion creates also be a reduction of cancer risk due to exposure by around 50% per annum. NO, and when it oxidises, it becomes NO . The conversion of NO to NO Figure 15 shows the DCV replacement programme, coupled with other control 2 2 initiatives targeting franchised buses and LPG-powered vehicles, will also reduce can be aggravated by O , the ambient 3 the NO annual roadside level by about 40%, which is still not enough to meet the level for which has risen by 18% since 2 new AQO for this pollutant. The concentrations of roadside NO2 will be brought 1999. Excessive NOX are emitted closer to the new AQO with other non-end-of-pipe solutions and when more from badly maintained vehicles where vehicles switch to newer and cleaner models. their emissions-reduction devices As the number of pre-Euro 4 DCV will progressively drop over the period 2014- have become defective. In Hong 2020, there will be steady emissions reduction at roadside every year. Kong, the main sources are LPG taxis

– 18 – Franchised buses New emissions control for LPG vehicles Franchised buses are permitted As taxis contribute 20% of the road mileage in Hong Kong, we expect this to have a life of up to 18 years in programme to cut roadside pollution significantly. Taxis and PLB need good Hong Kong. There are no pre-Euro maintenance, including the regular replacement of their catalytic converters (on franchised buses anymore but there average about every 18 months) because they are high-mileage vehicles. The are still many pre-Euro 3 buses in Legislative Council has already allocated $150 million to provide a one-off subsidy service as at the end of 2012. Based to help the owners of these vehicles to replace the devices. Replacement should begin to take place from August 2013 by government contractors. on the age distribution of the bus fleet, about 2,950 buses will retire At the same time, we will be setting-up mobile remote sensors at roadside that can between 2013 and 2017, including all detect excessive emissions from LPG vehicles. We aim to deploy up to 5 sensors Euro 1 buses by 2015, the majority of per day in different locations. Once detected, the vehicle owner will be notified of the need to repair his vehicle and pass an emissions test within 12 working days, Euro 2 and some of the Euro 3 buses. failing which the vehicle licence will be cancelled (this is the same as when vehicle owners are requested to take their vehicles to undergo a smoke test). We have a two-pronged strategy to maximise emissions reduction This programme will also be effective for petrol vehicles. The low mileage of private cars do not call for frequent replacement of catalytic converters, and the excessive from the franchised bus fleet. emissions problem from them is much less prevalent when compared to taxis and Firstly, we will work closely with PLB. Our emission survey found converter failure in private car is less than 10%. the bus operators to replace their Nevertheless, the owners of petrol vehicles identified by the remote sensors will fleet with cleanest bus models in also be notified to repair his vehicle and pass an emissions test. keeping with the bus replacement programme once such models are available in the market (subject to

FIGURE 13 Normal retirement timetable of franchised buses 2013-17 (as at December 2012)

– 19 – 5 | Reducing Roadside Air Pollution successful model testing under SCR retrofits for Euro 2 and 3 franchised buses local operating condition), and also The franchised bus companies have retrofitted diesel particulate filters (DPF) identify opportunities to switch to on all Euro 2 and 3 buses to reduce PM from 2008-10, with the exception cleaner technologies (see below). of a few bus models where retrofitting was technically infeasible. Our new retrofit programme aims to add a SCR to reduce NO . SCR retrofits have been Secondly, the government will X successful in Europe. Local tests have already been done and the Legislative subsidise the cost of retrofitting Euro Council will be asked to vote for the funding for this programme in the near 2 and 3 buses with selective catalytic future, after which the bus operators will arrange for the retrofit. reduction devices (SCR) to reduce NO emissions to reach Euro 4 and 5 To strike a balance between emissions reduction and cost effectiveness, the X retrofit scheme applies to those buses with at least two years of remaining standards respectively. service life after the retrofit and where there are reasonable numbers of those bus models. We estimate about 1,400 buses will be eligible for the retrofit. The

Changing vehicular technology SCR retrofit can reduce NOX emissions by at least 60%. This is the fastest, least Another end-of-pipe solution is to costly, most efficient way of reducing emissions from our bus fleet’s tail-pipe. Our target is to complete the retrofit by 2016 on a best endeavour basis. change the technology of vehicles altogether. The switch from diesel to LPG for taxis and PLB is one such example. In 2010, the government Zero emission franchised buses proposed zero emission franchised To develop a zero emission franchised bus fleet policy, we will buses as the ultimate objective. need to identify the steps, timeline and costs for the transition. Funds were made available for the Bus companies are already required to replace buses before purchase of six hybrid buses and they reach 18 years. 36 electric buses for trial by the franchised bus operators. Trials Requirements were included in the three new bus franchises granted in will start when the vehicles arrive April 2012 requiring bus operators to acquire the most environmentally- in Hong Kong starting in 2014. friendly buses in terms of vehicle exhaust emissions (with the ultimate Moreover, hybrid and electric objective of acquiring zero emission buses) that are technologically- vehicles are also encouraged (see proven and commercially available when buying new buses, taking Pilot Green Transport Fund below). into account feasibility in terms of operation and passenger service The government has been working requirements and affordability for the bus operators and passengers. with car park providers, property The same provision will be included in the other franchises upon their developers and managers, as well expiry in 2016-17. as the two electric utilities to provide charging facilities. Low/zero emission vehicles Age limit for new DCV Availability of private passenger hybrid and electric vehicles As part of our measure (noted (EV) in the market is critical for adoption, and also the wide above) to replace polluting DCV, we availability of charging points as far as EV are concerned. also want a defined period for new Hong Kong now has over 1,000 charging points, which compares very DCV so that Hong Kong can renew well with cities in the US and Europe. To promote expansion of the its DCV fleet to benefit from model charging network, policy is in place for car parks in new developments upgrade and change in technologies. to be granted concession on Gross Floor Areas where they enable EV- Setting an expiry time for vehicle charging. For existing buildings, a hotline has been set up to provide life is commonly practised around assistance to EV buyers and car park operators for setting up EV the world. For example, New York charging facilities. EV charging now enjoys an increasing penetration in uses petrol vehicles for its taxi fleet both new and existing private properties. and has a 6-year age limit for them,

– 20 – Professor Anthony J Hedley Professor Emeritus, The University of Hong Kong “We welcome a new approach to air quality management. This is a defining moment in environmental health. However, we have no illusions about the complexity of this task and the obstacles to be overcome. Cleaner air will hugely benefit child health and reduce harm and economic cost to the whole community.”

Professor Donald R. Blake University of California, Irvine, USA “The catalytic converter replacement programme EPD is undertaking with respect to LPG-powered vehicles is unprecedented in the world. Reduction in the key air pollutants should be significant at roadside once the programme kicks in.”

Professor T W Wong The Chinese University of Hong Kong “Air pollution is a silent killer. It is especially dangerous to our children, our senior citizens, and the chronically sick residents. The government must accord air pollution control a very high priority.”

Professor Wing-tat Hung Hong Kong Polytechnic University “Roadside air pollution kills many people every year, including my mother who died of lung cancer because of working along roadside. Drivers also suffer from poisonous vehicle emissions. Everyone has the responsibility to save lives by reducing traffic emissions. Environmental and transport professionals, whether in governmental or non- governmental organisations should work together for clean air.”

– 21 – 5 | Reducing Roadside Air Pollution which will be shortened to 5 years Franchised bus routes rationalisation Vehicle inspection and maintenance in 2015. Goods vehicles on the Another major measure to improve All commercial vehicles irrespective Mainland, which are mostly diesel- air quality is the rationalisation of of age must pass the Transport powered, have a stipulated age limit bus routes and network. This is a Department’s roadworthiness test of 15 years. In Hong Kong, new DCV prime measure of the Transport for their licences to be renewed. will have a life of 15 years under our and Housing Bureau and Transport Commercial vehicles are mainly proposal. Department, the details of which diesel or LPG-powered. The tests have been released elsewhere.13 The being used for these two types of Environment Bureau and EPD are vehicles do not require the use of Transport Management working closely with them on the dynamometer and are not designed Solutions air quality front and will collaborate to screen out vehicles emitting high Road conditions affect vehicular with them to explain the air quality PM and NOx. What this means is emissions. Traffic congestions slow benefits arising from bus route that a diesel or LPG vehicle can pass down vehicle speed, which in turn rationalisation to the public. The the respective roadworthiness test generate higher pollutant emissions. government needs the active support but still has high pollutant emissions. Congestion problems cannot always of District Councils and the public be solved by building more roads, to achieve the outcomes we all wish Private cars, which are predominantly especially in a small city like Hong to see. petrol vehicles, when over Kong that already has a well- 6-years of age must also pass the developed road network. To improve Cross-harbour tunnels usage roadworthiness test for licence road conditions, we need appropriate rationalisation renewal. Again, no dynamometer policies and tools, such as to give Yet another frequently discussed is used in the test and like for LPG priority to public transport, manage transport improvement is adjusting vehicles, it is ineffective in screening transport demand, and divert traffic the tolls of the three road harbour out vehicles with defective catalytic using technology. crossings so as to redistribute traffic converters that emit high NOx and amongst them to ease congestion other pollutants. Low emissions zones at the Cross Harbour Tunnel. The It makes sense to have the cleanest Transport and Housing Bureau and In the case of smoky vehicles, EPD buses going into areas with the most Transport Department have already uses the dynamometer smoke test, people so as to reduce their exposure released details elsewhere.14 This which involves a large treadmill- to pollution. We will designate low initiative contributes to improving air like machine that simulates vehicle emissions zones for buses (LEZ) quality, as it will improve traffic flow. driving on a road. Since the test was at busy corridors, where only the implemented in 1999, combined with cleanest models will be allowed. the $1,000 fixed penalty, there has been an 80% reduction of smoky vehicles. However, this test does not Low Emission Zones 2015 measure pollutants such as PM and

Since 2011, franchised bus operators have been encouraged as far as possible NOX that are creating the roadside air to use cleaner buses (Euro 4 and 5) for running on pilot LEZ in Central, quality problems we have today. Causeway Bay and Mong Kok, with the target of having only buses that meet Euro 4 or above emission standard in those zones by 2015. Based on the To carry out the tests measuring number of buses deployed on the routes that pass through those zones, about various pollutants for the various 2,300 cleaner buses will be needed for this scheme. On the current basis of the bus replacement timetable, approximately 2,100 Euro 4 or above buses would types of vehicles, test stations be available for deployment by 2015. Together with the SCR retrofit scheme, a will need to be upgraded to sufficient number of cleaner buses will be available to meet the target. accommodate and operate the necessary equipment.

– 22 – Urban Planning Solutions vehicles are trapped between the and by creating LEZ, roadside air Hong Kong’s city morphology buildings resulting in poor roadside quality will improve. in urban centres has one major air quality, exposing a very large disadvantage as far as air quality number of people on a daily basis. Over the longer-term, there are is concerned. Our city has high- opportunities to use urban planning rise buildings on either side of very Effective ways to deal with the ‘street and design solutions in new districts busy roads and large numbers of canyon’ effect is to reduce tail-pipe and areas targeted for regeneration to people at roadside for much of the emissions of the types of vehicles combine with transport management day. Hennessy Road on Hong Kong that ply the busiest roads. Thus, by for better air quality outcomes in Island and Nathan Road of Kowloon focusing on cleaning-up franchised addition to improving overall functionality are good examples of this type of buses, taxis and PLB, as well as DCV, and community well-being. city morphology. The emissions from

FIGURE 14 Projected RSP concentration in 2020

FIGURE 15 Projected NO2 Concentration in 2020

– 23 – 5 | Reducing Roadside Air Pollution

Urban greening part-time pedestrian streets, and and can generally only be achieved, A useful measure is urban greening. more than 40 traffic calming streets. with careful forward planning, in Trees and other plants trap air Pedestrianisation is challenging new development areas. Transport pollutants in their bark and foliage, in Hong Kong due to limited road Department has just completed a and can absorb air pollutants. The space and many competing needs. study examining how to improve the government has an existing greening To expand pedestrian schemes will existing cycling networks and bicycle policy to improve the quality of our require skilful urban planning, as well parking facilities within the nine living environment through active as the support of the community. existing new towns. planting, proper maintenance and preservation of trees and vegetation, Cycling networks as well as to invest in plantings to A comprehensive cycling track Financial Solutions beautify the streetscape, which also network is being created in the New Governments have the ability to use helps to cleanse the air. One of the Territories from Ma On Shan to Tsuen a range of financial tools to help targets is to bring about noticeable Wan, via Sheung Shui, Yuen Long manage air quality beyond directly improvements in urban greenery. and Tuen Mun mainly for recreational funding end-of-pipe solutions such Development Bureau’s Greening, purposes. The Ma On Shan-Sheung as the DCV replacement programme Landscape and Tree Management Shui section will be completed and defective emissions reduction Section has many plans to continue in 2013. Safe cycling in the busy devices replacement programme for to green the city. Moreover, urban areas is more challenging LPG taxis and PLB noted above. Development Bureau formulates guidelines and best practices for green-roofing and vertical greening of buildings, which can also reduce Kowloon East heat and therefore energy usage. In the light of the recommendations To take forward the initiatives for Energizing Kowloon East (EKE), Development of the Council for Sustainable Bureau has formulated a “CBD2” planning strategy, with “Connectivity”, “Branding”, “Design” and “Diversity” as the core concept. Our vision is to foster a pedestrian Development in 2010, Building environment in Kowloon East which is “walkable”, “stayable” and “sittable”. The Department, Lands Department walking environment should be safe, comfortable, inviting and convenient for people and Planning Department have to enjoy the walking experience. subsequently introduced a series of measures to enhance the Development Bureau has already taken forward various short-term pedestrian improvements, including footpaths widening, traffic signal modifications, pedestrian design standard of new buildings crossing improvements, and obstacles removal that hinder pedestrians (such as traffic to foster a quality and sustainable signs). Medium and longer-term measures will also be implemented progressively. To built environment, which includes enhance accessibility from Kowloon Bay MTR Station to the Kowloon Bay Business the stipulation of site coverage of Area (KBBA) and further to the waterfront of the Kai Tak Development, Development greenery in new developments. The Bureau is commissioning a feasibility study to improve the pedestrian environment Environment and Conservation Fund for the KBBA. The study will focus on creating a pedestrian-friendly environment with attractive, vibrant streets and urban greening by firstly improving the at-grade also provides funding support for pedestrian environment and secondly formulating grade-separated pedestrian links greening projects of local non-profit where necessary. A multi-disciplinary approach taking due account of the traffic and making organisations. transport needs, as well as planning/urban design requirements will be adopted in tackling the issues and recommending solutions.

Pedestrian schemes Development Bureau is also promoting more urban greening in Kowloon East. Trees and Pedestrian schemes are also shrubs have been planted at various locations. Development Bureau will continue to useful. There are seven full-time coordinate with other departments to further enhance existing roadside greening there. pedestrian streets and some 30

– 24 – Kowloon East Promenade

FIGURE 16 Kowloon East plan

– 25 – 5 | Reducing Roadside Air Pollution

Pilot Green Transport Fund Use of taxation as a tool private car. A reduction in FRT was The government set-up the $300 Taxation can be used to control the first implemented in April 2007 for million Pilot Green Transport Fund growth of private cars. For example, petrol vehicles. EPD has tightened for application by transport operators in 2011, the First Registration Tax the fuel efficiency and emissions to trial innovative green transport (FRT) was increased for this category requirement of qualifying models technologies that can out-perform of vehicles by approximately 15% (for in December 2012 to be effective conventional methods, such as clean each tax band). It helped to slow the from April 2013. In April 2008, vehicles, emission reduction devices, growth in the number of registered a reduction in FRT was also put fuel saving devices and conversions private cars from 5.8% to about 4.5%. in place for commercial vehicles from conventional to alternative- Nevertheless, Figure 17 shows the to encourage buyers to opt for fuelled vehicles. As of December projection of rise in vehicle numbers, models that meet Euro 5 standards. 2012, 37 applications were approved, particularly private cars, in the next EPD has likewise put forward new which covered trials of electric buses, few years. environment-friendly commercial goods vehicles and taxis, as well vehicles emissions requirements for as hybrid light buses and goods While we do not encourage private heavy duty and light duty vehicles for vehicles.15 car use where public transport implementation from April 2013.16 At service is available, but if such a the same time, we have also waived vehicle has to be purchased, the the FRT for purchase of EVs until government encourage buyers to March 2014 to encourage their wider choose environment-friendly petrol adoption.

FIGURE 17 Projection of registered vehicle numbers to 2017

– 26 – GREENING PORTS – A WORLD TREND Hong Kong recognizes reducing shipping emissions will lower public health risk

– 27 – 6 | Reducing Marine Emissions

ong Kong is the third 2.8%) and NOX emissions from We are carrying out preparation work busiest container port in vessel engines. The HKSAR in relation to the proposed legislation the world. Container ships, government gives effect to these to mandate the fuel switch for OGV Hcruise liners, oil tankers, regulations through the Merchant at berth in Hong Kong waters. We dry bulk carriers and other types of Shipping (Prevention of Air Pollution) will consider the feasibility of the large ships are often referred to as Regulation. All OGV visiting Hong proposed legislation in detail and ocean-going vessels (OGV). There Kong must comply with the latest consult the shipping trade, including are also many types of ships referred IMO Standards and actions are being the cruise industry. The Hong Kong to as river trade vessels that sail in taken to reflect the latest standards Shipowners Association and Hong regional waters. Ships that only sail in the Regulation. Transport and Kong Liner Shipping Association in Hong Kong’s local waters are Housing Bureau will also consider support mandatory fuel switch at local vessels.17 Figure 18 shows the amending the Regulation to expand berth in Hong Kong. statistics of these vessels entering the adoption of the direct reference Hong Kong waters over the past few approach for automatic updating of Figure 20 shows EPD’s estimates in years. While the number of OGV future IMO standards. pollutant reductions if all OGV switch has fallen, the size of the vessels to a 0.5% diesel while at berth in has increased, thus emissions have Fair Winds Charter and fuel switch Hong Kong.18 increased. incentive scheme From 1 January 2011, a number Regional fuel switch at berth These ships emit considerable of shipping companies signed the To maximise the public health and

quantities of SO2, PM and NOX. As two-year Fair Winds Charter to switch environmental benefits, we have the emissions are emitted at sea to a much cleaner 0.5% sulphur begun discussion with relevant level, they are easily blown to areas fuel while at berth in Hong Kong on authorities on the feasibility of with high population density in Hong a voluntary basis. The government mandating fuel switch for all OGV Kong. In view of the high toxicity of applaud this effort from the shipping berthed at Hong Kong and PRD bunker fuel, the pollution presents a industry, and in response, the ports. Such a regional initiative will major health risk. government launched the incentive have the greatest health benefit for scheme in September 2012 to residents in Hong Kong, Shenzhen, reduce by half the port facilities and Dongguan, Zhongshan, Zhuhai, Regulating OGV light dues of those OGV that switched Macao and parts of Guangzhou OGV, because of their size, to the cleaner fuel while at berth. who are located closest to ports and contribute the bulk of the shipping The shipping companies have since shipping activities. Indeed, Hong emissions. The International Maritime renewed their commitment to switch Kong, Shenzhen and Guangzhou Organisation (IMO) regulates the fuel at berth for a further year till the are the third, fourth and seventh sulphur content of bunker fuel (up end of 2013. in ranking in terms of annual world to 3.5% although the average is

FIGURE 18 Statistics of ships arriving in Hong Kong (2007-2011)

2007 2008 2009 2010 2011 OGV arrival 37,15 0 35,850 33,157 32,645 32,490 River vessel arrival 188,840 181,510 172,348 179,168 172,180 HK licensed vessels* 13,524 13,318 14,125 14,606 15,463

* excluding 800 government vessels

– 28 – FIGURE 19 Shipping emissions in Hong Kong in 2011

FIGURE 20 Estimated territory emission reduction by mandating fuel switch at berth in Hong Kong (using 0.5% sulphur diesel with 2011 as base year)

– 29 – 6 | Reducing Marine Emissions

FIGURE 21 19 Spatial distribution of OGV SO2 (2008)

ranking in twenty-foot container designation requires all ships to immediate goal is for local vessels equivalent unit (TEU), making up use a 1% sulphur fuel, which will to switch from the currently-used about 10% of global container be tightened to 0.1% maximum by marine light diesel with sulphur throughput. 2015. We believe an ECA designation content of 0.5% to a cleaner diesel will bring the highest public health with sulphur content of 0.05%, which 20 Longer-term, our vision is for the benefits to the region. will reduce SO2 emissions from these whole of the waters of the PRD to ships by about 90%. be designated an Emission Control Upgrading locally-supplied fuel Area (ECA) under the IMO, as is the The government will progressively A working group comprising case for the waters of North America upgrade the quality of locally- representatives from EPD, Marine and also of Northern Europe. ECA supplied marine light diesel. Our Department and Transport

– 30 – FIGURE 22 Emission Control Area in PRD – OGV using 0.1% sulphur diesel Vessels within ECA using diesel with sulphur ≤ 0.1%

SO2 RSP NOX

18,000 1,900 4,730 Emission reduction (in tonnes) - % of OGV emissions 96% 86% 24%

Projected OGV emissions in 2020 (in tonnes) 18,700 2,220 19,800

Department, as well as from local legislations to stipulate clearly including policing, law enforcement, marine industry has been formed that emissions that are as dark as well as nature conservation. EPD to explore upgrading the quality as or darker than Shade 2 on the and Marine Department are reviewing of marine light diesel through Ringelmann Chart for 3 minutes or the fleet’s profile to consider how regulation, the initial work plan has more will be an offence.21 best to reduce emission, taking costs been announced in March 2013. and benefits into account. Subject to Slow steaming findings, EPD will formulate strategies Slow steaming helps to save fuel as to deal with the high-polluting vessels Other measures well as reduce emissions. However, in order to reduce their pollutant

On-shore power for cruise terminal due to very busy shipping lanes in emissions, particularly NOX. The Kai Tak Cruise Terminal will Hong Kong waters and the need for start operation in June 2013. The marine traffic management, speed mandatory fuel switch at berth reduction is already required in requirement will apply to cruise ships designated port and harbour areas. as well when legislation is passed. There may be other areas where slow Moreover, the terminal has reserved steaming is possible but in some space for the installation of on-shore areas slow steaming may not be power facilities. The government will desirable for navigational safety. We study the design and requirements need to consult the shipping sector, for on-shore power and seek funding port operators and other stakeholders, from the Legislative Council for its including pilots, to explore feasibility installation at the cruise terminal from various perspectives including so that vessels with the necessary navigational safety, marine traffic equipment can connect to the grid to density and cost. eliminate emissions at berth. Government vessels Dark smoke from ships The government fleet of ships To provide an objective benchmark consists of about 800 vessels for prosecution against excessive (including 114 of them with their dark smoke emissions (mainly PM) main and auxillary engines using from vessels in Hong Kong waters, Euro 5 diesel with 0.001% sulphur Transport and Housing Bureau will content). These vessels are being propose amending the relevant used for a wide range of activities

– 31 –

Arthur Bowring Managing Director, Hong Kong Shipowners Association

“We are grateful to Government for its commitment to introduce regulation mandating fuel switch at berth, and for its further commitment to work with Beijing, Guangdong and Macao to extend shipping air emission reduction throughout the Pearl River Delta. It is through such regulation that air emissions from shipping can be significantly reduced, while maintaining fair competition within the industry.”

Roberto Giannetta Secretary General Hong Kong Liner Shipping Association “Responsibility for clean air does not fall solely on government. Rather, it is the communal duty of all. By launching the Fair Winds Charter, the shipping industry has put into action our commitment to cooperate with government and other stakeholders in addressing air quality concerns. This necessary first tough step aims to pave the way for others to follow. We remain equally supportive of mandatory legislation and clean marine emissions within the greater PRD air-shed.”

Betty Ho urban planner, Hong Kong Institute of Planners “Good town planning and urban design will contribute significantly to improving our air quality and living environment through provision of adequate green breathing spaces, facilitating natural ventilation within the urban fabric and reducing the need for vehicular traffic, etc.”

Ir. Conrad T C Wong Chairman, Hong Kong Green Building Council, JP “Hong Kong needs to be green and clean. Air quality improvement is a major task we need to tackle through various means. The Hong Kong Green Building Council is pleased to see the government making a major commitment and invest heavily in this area. We will support the government in whatever way we could. We wish to improve on our environment for our future generations.”

– 32 –

POWER PLANTS EMISSIONS ALREADY GREATLY REDUCED Further reduction will have to come from changing the fuel mix and better demand-side management

– 33 – 7 | Emission Control of Power Plants

n 2011, electricity generation is a specifying the emission allowances equipment in recent years. They major source of emission in Hong for the emission years from 2010, are also using low emission coals

Kong, contributing 44% of SO2, the second technical memorandum whenever possible. Further emissions 26% of NO and 16% of PM . gazetted in 2010 specifying the reduction can be achieved through I X 10 The two electricity utilities operate revised emission allowances for reducing the reliance on coal and four power plants in Hong Kong, the emission year from 2015, and switching to cleaner fuels on the which together meet about 77% of the third technical memorandum supply side, as well as enhancing local electricity consumption. The gazetted in 2012 specifying the energy efficiency and conservation on remaining 23% is met by imported revised allowances for the emission the demand side. nuclear electricity from the Mainland years from 2017. In other words, the under long-term contract. In 2011, two power companies are required Fuel mix change coal usage made up 71% of the to increasingly reduce emissions The issue of fuel mix switching locally-produced electricity with the under those technical memoranda will have an impact on emissions balance from natural gas. starting from 2010. Figure 24 shows from electricity generation. We the required reduction levels, as well will review the overall fuel mix, Technical memoranda as the achieved levels with respect to which will also provide us with a From November 2008 to October the first technical memorandum. perspective in our discussion with 2012, three technical memoranda the two power companies when the were gazetted for tightening the In order to meet the emission caps, existing electricity market regulatory the electricity companies have emission caps for SO2, NOX and framework is reviewed. As this is applied advanced technology to PM10 among local power plants subject to separate consultation, we over time, with the first technical reduce emissions. They added flue will not discuss it in this paper.

memorandum gazetted in 2008 gas desulphurisation and NOX control

FIGURE 23 Hong Kong electricity fuel sources

Natural gas Natural gas 29% 23%

Including Local Year nuclear generation 2011 import

Coal 54% Coal 71% Nuclear electricity 23%

– 34 – FIGURE 24 Emission caps and trend of Hong Kong’s electricity sector

Demand-side management Our objective to maximise demand- Other measures Energy efficiency and conservation side opportunities in both the public Other energy savings measures practices will also reduce emissions and private sectors will come about include incentivising consumers to as less electricity is used. As through improved inter-departmental save electricity through the tariff buildings account for some 90% of coordination. As announced in the structure, reviewing the Mandatory the electricity consumption in Hong 2013 Policy Address, the Chief Energy Efficiency Labelling Scheme Kong, we will continue to promote Executive has tasked the Secretary to encourage consumers to use energy efficiency in general and in for the Environment to chair an inter- more energy efficient appliances, buildings in particular. departmental steering committee to using more light-emitting diode (LED) promote green building development or other energy efficient lamps for With the Buildings Energy Efficiency in a holistic manner. Working closely street lighting and traffic signals, Ordinance already in effect, we with various stakeholders, the phasing out the use of incandescent will further review and consider steering committee will strengthen light bulbs, and implementing the tightening the relevant Building coordination among various Bureaux District Cooling System at the Kai Tak Energy Codes for building services and Departments in formulating Development. installation. We will also promote implementation strategies and action the performance of energy and plans for the promotion of green carbon audits in buildings, and the building in both the public and government will take the lead with its private sectors in Hong Kong. own buildings.

– 35 – 8 | Emission Control of Non-Road Mobile Machinery (NRMM)

Non-Road Mobile Machinery (NRMM)

NRMM include a wide range of mobile or transportable machinery powered by internal combustion engines and are used off-road, which are widely used at

construction sites, container terminals and at the airport. They contribute 5% NOX

and 8% PM10 to Hong Kong’s total air pollution.

At present, there is no emission standards for NRMM for use in Hong Kong, although they must not cause nuisance or emit excessive dark smoke. NRMM driven by liquid fuel can only use liquid fuel with a sulphur content not exceeding 0.005%.

We are carrying out preparation work in relation to proposed legislation to mandate the control of NRMM for local use, where all NRMM (apart from exempted NRMM) to be sold, leased or otherwise supplied for local use in Hong Kong, as well as those NRMM to be used locally in specified activities would be required to meet emission standard and obtain approval from the Director of Environmental Protection. Approved NRMM will be affixed with a label for identification. The NRMM in existing use in respect of which application for exemption has been made and exemption has been granted would be required to affix a label to show their exemption status.

– 36 – 9 | Conclusion

ong Kong needs to work The government has been investing within government, as well as with doubly hard to improve heavily in improving air quality. In stakeholders, before new policies can air quality. We have many 2013-2014, the EPD will spend be made, the public consulted, and Hurban ‘street canyons’, we more than $800 million in its air financial resources assessed and have a large and busy port with many programme, accounting for a allocated. shipping and trucking activities, quarter of the total departmental we have an old DCV fleet, and the expenditure. This is an increase Beyond taking local measures, we regional background pollution level is of 41% over that in 2011-2012. must collaborate in research with relatively high. The government has also funded the Guangdong authorities to better various air quality improvement understand the complexity of our Our focus must be to reduce public initiatives through revenue regional smog condition so as to health risk for local residents. The forgone in supporting the use of implement more effective control biggest health gains can be derived environmental-friendly vehicles and measures. We are also actively exploring with our Guangdong counterparts on fuel switching at berth in PRD ports. While working In the longer-term, we across jurisdictions presents many recognize we will need to do challenges, this is a major aspect of more still but there needs our clean air policy going forward. To implement new ideas, as well to be internal discussion as to continue to conduct research and improve upon our AQM system, within government, as well substantial financial resources and as with stakeholders, before joint efforts must be made, and these will require public support. As new policies can be made, ideas mature into policies, we will be bringing them to the public for the public consulted, and deliberation and debate.

financial resources assessed Improving air quality is a constant and allocated pursuit of this Administration. We will need the active support of stakeholders and the community to from reducing roadside air emission the use of cleaner diesel. In this achieve the results we all wish to see. through implementing aggressive year’s Policy Address, $10 billion end-of-pipe solutions (such as our has been earmarked to support DCV replacement programme), the early retirement of the pre-Euro coupled with better transport IV diesel commercial vehicles. All management (such as rationalizing these programmes underscore the franchised bus routes, and improving importance the government attaches vehicle testing of pollutants) and to air quality improvement. urban planning (such as creating pedestrian schemes), as well as In the longer-term, we recognize we reducing shipping emissions (through will need to do more still but there mandating fuel switch at berth). needs to be internal discussion

– 37 – 9 | Conclusion

FIGURE 25 Timeline of Clean Air Plan

Health- based To reduce air pollution and lower public health risk air policy

2012 2014 2014 2015 2020 HK-Guangdong New AQO to come New AQHI to Achieve HK’s HK- Achieve new AQO Targets agreement on into force complement new Guangdong targets by 2020 and HK’s regional pollution AQO for 2015 HK-Guangdong reduction targets targets for 2020

2013-2019 2013-2014 2012- Reducing roadside emission Reducing shipping emission Intensifying cross-boundary Major (a) DCV replacement scheme; new (a) Mandate fuel switch at berth for collaboration strategies DCV to have 15 years life OGV (a) Study on regional photochemical (b) SCR for franchised buses (b) Local vessels to use cleaner smog (c) Strengthened emission control marine diesel. (b) Cleaner production in Guangdong for petrol and LPG vehicles (c) Explore OGV fuel switch at berth (d) Franchised bus routes in PRD ports rationalisation (e) Low emission zones for franchised buses

2013-2015 Collaborate with local and Feedback international experts on air quality and health research

– 38 – 10 | Footnotes and abbreviations

1 The Pearl River Delta economic zone (PRD) environmentinhk/air/air_quality/backgdf_2.html 14 Chief Executive Policy Address, paragraph 177, is one of China’s leading economic regions and for the regional air monitoring network, 16 January 2013, and Paper CB(1)409/12- and a major global manufacturing centre. The see http://www-app.gdepb.gov.cn/raqi3/RAQI_ 13(03) “Policy Address 2013: Transport-related zone is formed by 9 cities, namely Guangzhou, en.htm. Policy Initiatives of the Transport and Housing Shenzhen, Foshan, Zhuhai, Jiangmen, Zhongshan, Bureau”, http://www.legco.gov.hk/yr12-13/ Dongguan, four districts and counties of Huizhou 7 For details, see http://www.cleanerproduction. english/panels/tp/papers/tp0118cb1-409-3-e. and four districts and counties of Zhaoqing. hk/en_index.asp. pdf; and a three-month public consultation on Exports from the PRD make up about 25% of 8 For details on the AQO, see http://www.epd.gov. the Proposed Measures to improve the Traffic China’s total, and this region contributes between hk/epd/english/environmentinhk/air/air_quality_ Distribution among the Road Harbour Crossings 9%-10% of China’s total GDP. The PRD is a objectives/air_quality_objectives.html has commenced on 8 February 2013, see http:// part of Guangdong Province, which has ranked www.thb.gov.hk/eng/policy/transport/policy/ first in GDP terms in China for over 20 years, 9 The new Air Quality Heath Index (AQHI) consultation/RHC_consultation_2013.eng.pdf. contributing 11%-12% of the national total GDP. reporting system is based on the recommendation of expert consultants, the 15 For the Pilot Green Transport Fund, see http:// 2 While it is not easy to estimate the number report for which can be found at http://www. www.epd.gov.hk/epd/english/environmentinhk/air/ of factories in the PRD owned by Hong Kong epd.gov.hk/epd/english/environmentinhk/air/ prob_solutions/pilot_green_transport_fund.html. companies, the number may well be in the region studyrpts/air_studyrpts.html. See also Paper of 50,000. 16 For tax incentives for environment-friendly CB(1)569/12-13(02) “Review of the Air Pollution vehicles in Hong Kong, see http://www.epd. 3 See (a) Wong CM, McGhee SM, Yeung RYT, Thach Index Reporting System” for LegCo’s Panel gov.hk/epd/english/environmentlinhk/air/prob_ TQ, Wong TW, Hedley AJ. Short term health impact on Environmental Affairs for discussion on 25 solutions/environment_friendly_private_cars. and costs due to road traffic-related air pollution. February 2013, http://www.legco.gov.hk/yr12- html for private cars and http://www.epd.gov.hk/ Final Report submitted to Environmental Protection 13/english/panels/ea/papers/ea0225cb1-569- epd/english/environmentinhk/air/prob_solutions/ Department. Hong Kong Air Pollution and Health 2-e.pdf and http://www.legco.gov.hk/yr12-13/ environment_friendly_commercial_vehicles.html Joint Research Group. 2002; (b) Lai HK, Wong english/panels/ea/papers/ea0225cb1-569-3-e. for commercial vehicles. CM, McGhee SM, Hedley AJ. Assessment of the pdf. health impacts and economic burden arising 17 River trade vessels are mainly registered in the 10 Chief Executive Policy Address, paragraphs Mainland, and local vessels include ferries, from proposed new air quality objectives in a high 135-136, 16 January 2013, and “2013 Policy pollution environment. The Open Epidemiology. pleasure vessels and locally-licensed fishing Address, Policy Initiatives of Environment vessels. 2011;4:106-122; and (c)Lee SL, Tinsley H, Chau Bureau: Environment Protection”, http://www. J, Lai HK, Thach TQ, Ip Patrick, Chow CB, Hedley epd.gov.hk/epd/english/news_events/legco/files/ 18 If fuel quality was 0.1% sulphur, the reductions AJ. Review of air pollution and child health in Hong EA_Panel_20130128a_eng.pdf issued on 16 are estimated to be SO2 16%, RSP 7% and NOX Kong. HK Journal of Paediatrics (in press). January 2013. 0.2%.

4 Lai, HK, Tsang, H, Chau, J, Lee, CH, McGhee, 11 The oldest batch of Euro 3 vehicles are now 19 This image is taken from “A Price Worth Paying: SM, Wong, CM (2012). Health Impact more than 10 years old. The Case for Controlling Marine Emissions Assessment of Measures to Reduce Marine in the Pearl River Delta”, published by Civic Shipping Emissions, Final Report. Department of 12 There are 18,138 taxis in Hong Kong and only Exchange, September 2012, http://dl.dropbox. Community Medicine, School of Public Health, seven are not LPG-powered. There are 4,350 com/u/2439304/civicexchange/201209/ The University of Hong Kong. PLB, of which 66% are LPG-powered. PriceWorthPaying/_en.pdf.

5 For details, see “Air Pollutant Emission Reduction 13 Chief Executive Policy Address, paragraph 139, 20. Ibid. Plan up to 2020”, ACE Briefing Paper 12/2012, 16 January 2013, and Paper CB(1)409/12- http://www.epd.gov.hk/epd/english/boards/ 13(03) “Policy Address 2013: Transport-related 21. In 1897, Maximilien Ringlemann developed a advisory_council/files/ACE_Paper_12_2012.pdf. Policy Initiatives of the Transport and Housing simple set of grids for measuring the density Bureau”, http://www.legco.gov.hk/yr12-13/ of smoke, which has since been called the 6 For details about Hong Kong’s air monitoring english/panels/tp/papers/tp0118cb1-409-3-e. Ringlemann scale/chart and is still in use today. network, see http://www.epd.gov.hk/epd/english/ pdf.

API Air Pollution Index NOX Nitrogen oxides AQHI Air Quality Health Index NRMM Non-road mobile machinery

AQM Air quality management O3 Ozone AQO Air Quality Objectives OGV Ocean-going vessels CO Carbon monoxide Pb Lead DCV Diesel commercial vehicles PLB Public light buses DPF Diesel particulate filters PM Particulate matter

ECA Emission Control Area PM2.5 Particulate matter less than or equal to 2.5 micrometers in diameter

EKE Energizing Kowloon East PM10 Particulate matter less than or equal to 10 micrometers in diameter EPD Environmental Protection Department PRD Pearl River Delta EV Electric vehicles PRDEZ Pearl River Delta Economic Zone FRT First Registration Tax RSP Respirable suspended particulates IMO International Maritime Organisation SCR Selective catalytic reduction devices

LEZ Low emission zones SO2 Sulphur dioxide LED Light-emitting diode TEU Twenty-foot container equivalent unit LPG Liquefied petroleum gas WHO World Health Organisation MTR Mass Transit Railway WHO AQG World Health Organisation Air Quality Guidelines NO Nitric oxide VOC Volatile organic compound

NO2 Nitrogen dioxide

– 39 –